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RE: PETITION FOR THE
CONSTITUTION OF THE
PRESENT
COURT
HANDLING THE TRIAL OF
THE MASSACRE OF 57
PERSONS, INCLUDING 32
JOURNALISTS,
IN
AMPATUAN, MAGUINDANAO
INTO A SPECIAL COURT
HANDLING
THIS
CASE
ALONE FOR THE PURPOSE
OF ACHIEVING GENUINE
SPEEDY TRIAL and FOR THE
SETTING UP OF VIDEOCAM
AND
MONITOR
JUST
OUTSIDE THE COURT FOR
JOURNALISTS TO COVER
AND FOR THE PEOPLE TO
WITNESS THE TRIAL OF
THE DECADE TO MAKE IT
TRULY
PUBLIC
AND
IMPARTIAL
AS
COMMANDED
BY
THE
CONSTITUTION,
Promulgated:
June 14, 2011
x ---------------------------------x
RE: LETTER OF PRESIDENT
BENIGNO S. AQUINO III FOR
THE
LIVE
MEDIA
COVERAGE
OF
THE
MAGUINDANAO MASSACRE
TRIAL.
x----------------------------------------------------------------------------------------x
RESOLUTION
CARPIO MORALES, J.:
On November 23, 2009, 57 people including 32 journalists and media
practitioners were killed while on their way to Shariff Aguak in Maguindanao.
Touted as the worst election-related violence and the most brutal killing of
journalists in recent history, the tragic incident which came to be known as the
Maguindanao Massacre spawned charges for 57 counts of murder and an
additional charge of rebellion against 197 accused, docketed as Criminal Case Nos.
Q-09-162148-72, Q-09-162216-31, Q-10-162652-66, and Q-10-163766,
commonly entitled People v. Datu Andal Ampatuan, Jr., et al. Following the
transfer of venue and the reraffling of the cases, the cases are being tried by
Presiding Judge Jocelyn Solis-Reyes of Branch 221 of the Regional Trial Court
(RTC) of Quezon City inside Camp Bagong Diwa in Taguig City.
Almost a year later or on November 19, 2010, the National Union of
Journalists of the Philippines (NUJP), ABS-CBN Broadcasting Corporation, GMA
Network, Inc., relatives of the victims,[1] individual journalists[2] from various
media entities, and members of the academe [3] filed a petition before this Court
praying that live television and radio coverage of the trial in these criminal cases
be allowed, recording devices (e.g., still cameras, tape recorders) be permitted
inside the courtroom to assist the working journalists, and reasonable guidelines be
formulated to govern the broadcast coverage and the use of devices. [4] The Court
docketed the petition as A.M. No. 10-11-5-SC.
In a related move, the National Press Club of the Philippines [5] (NPC)
and Alyansa ng Filipinong Mamamahayag[6](AFIMA) filed on November 22,
2010 a petition praying that the Court constitute Branch 221 of RTC-Quezon City
as a special court to focus only on the Maguindanao Massacre trial to relieve it
of all other pending cases and assigned duties, and allow the installation inside the
courtroom of a sufficient number of video cameras that shall beam the audio and
video signals to the television monitors outside the court. [7] The Court docketed
the petition as A.M. No. 10-11-6-SC.
By
separate
Resolutions
of
November
23,
2010, [10] the
Court consolidated A.M. No. 10-11-7-SC with A.M. No. 10-11-5-SC. The Court
shall treat in a separate Resolution A.M. No. 10-11-6-SC.
Meanwhile, various groups[11] also sent to the Chief Justice their respective
resolutions and statements bearing on these matters.
The principal accused in the cases, Andal Ampatuan, Jr. (Ampatuan), filed a
Consolidated Comment of December 6, 2010 in A.M. No. 10-11-5-SC and A.M.
No. 10-11-7-SC. The President, through the Office of the Solicitor General (OSG),
and NUJP, et al. filed their respective Reply of January 18, 2011 and January 20,
2011. Ampatuan also filed a Rejoinder of March 9, 2011.
On Broadcasting the Trial of the Maguindanao Massacre Cases
Petitioners seek the lifting of the absolute ban on live television and radio
coverage of court proceedings. They principally urge the Court to revisit
the 1991 ruling in Re: Live TV and Radio Coverage of the Hearing of President
Corazon C. Aquinos Libel Case[12] and the 2001 ruling in Re: Request Radio-TV
Coverage of the Trial in the Sandiganbayan of the Plunder Cases Against the
Former President Joseph E. Estrada[13] which rulings, they contend, violate the
doctrine that proposed restrictions on constitutional rights are to be narrowly
construed and outright prohibition cannot stand when regulation is a viable
alternative.
Petitioners state that the trial of the Maguindanao Massacre cases has
attracted intense media coverage due to the gruesomeness of the crime,
prominence of the accused, and the number of media personnel killed. They
inform that reporters are being frisked and searched for cameras, recorders, and
cellular devices upon entry, and that under strict orders of the trial court against
live broadcast coverage, the number of media practitioners allowed inside the
courtroom has been limited to one reporter for each media institution.
The record shows that NUJP Vice-Chairperson Jose Jaime Espina, by
January 12, 2010 letter[14] to Judge Solis-Reyes, requested a dialogue to discuss
concerns over media coverage of the proceedings of the Maguindanao Massacre
cases. Judge Solis-Reyes replied, however, that matters concerning media
coverage should be brought to the Courts attention through appropriate
motion.[15] Hence, the present petitions which assert the exercise of the freedom
of the press, right to information, right to a fair and public trial, right to assembly
and to petition the government for redress of grievances, right of free access to
courts, and freedom of association, subject to regulations to be issued by the Court.
The Court partially GRANTS pro hac vice petitioners prayer for a live
broadcast of the trial court proceedings,subject to the guidelines which shall be
enumerated shortly.
Putts Law[16] states that technology is dominated by two types of people:
those who understand what they do not manage, and those who manage what they
do not understand. Indeed, members of this Court cannot strip their judicial robe
and don the experts gown, so to speak, in a pretense to foresee and fathom all
serious prejudices or risks from the use of technology inside the courtroom.
A decade after Estrada and a score after Aquino, the Court is once again
faced with the same task of striking that delicate balance between seemingly
competing yet certainly complementary rights.
The indication of serious risks posed by live media coverage to the
accuseds right to due process, left unexplained and unexplored in the era obtaining
in Aquino and Estrada, has left a blow to the exercise of press freedom and the
right to public information.
The rationale for an outright total prohibition was shrouded, as it is
now, inside the comfortable cocoon of a feared speculation which no scientific
study in the Philippine setting confirms, and which fear, if any, may be dealt
with by safeguards and safety nets under existing rules and exacting
regulations.
In this day and age, it is about time to craft a win-win situation that
shall not compromise rights in the criminal administration of justice, sacrifice press
freedom and allied rights, and interfere with the integrity, dignity and solemnity of
judicial proceedings. Compliance with regulations, not curtailment of a right,
provides a workable solution to the concerns raised in these administrative matters,
while, at the same time, maintaining the same underlying principles upheld in the
two previous cases.
The basic principle upheld in Aquino is firm [a] trial of any kind or in any
court is a matter of serious importance to all concerned and should not be treated as
a means of entertainment[, and t]o so treat it deprives the court of the dignity
which pertains to it and departs from the orderly and serious quest for truth for
which our judicial proceedings are formulated. The observation that [m]assive
intrusion of representatives of the news media into the trial itself can so alter and
destroy the constitutionally necessary atmosphere and decorum stands.
The Court concluded in Aquino:
Considering the prejudice it poses to the defendant's right to due process as
well as to the fair and orderly administration of justice, and considering further
that the freedom of the press and the right of the people to information may be
served and satisfied by less distracting, degrading and prejudicial means, live radio
and television coverage of court proceedings shall not be allowed. Video footages
of court hearings for news purposes shall be restricted and limited to shots of the
courtroom, the judicial officers, the parties and their counsel taken prior to the
commencement of official proceedings. No video shots or photographs shall be
permitted during the trial proper.
Accordingly, in order to protect the parties' right to due process, to prevent
the distraction of the participants in the proceedings and in the last analysis, to
avoid miscarriage of justice, the Court resolved to PROHlBIT live radio and
television coverage of court proceedings. Video footage of court hearings for news
purposes shall be limited and restricted as above indicated.[17]
The Court had another unique opportunity in Estrada to revisit the question
of live radio and television coverage of court proceedings in a criminal case. It
held that [t]he propriety of granting or denying the instant petition involve[s] the
weighing out of the constitutional guarantees of freedom of the press and the right
to public information, on the one hand, and the fundamental rights of the accused,
on the other hand, along with the constitutional power of a court to control its
proceedings in ensuring a fair and impartial trial. The Court disposed:
The Court is not all that unmindful of recent technological and scientific
advances but to chance forthwith the life or liberty of any person in a hasty bid to
use and apply them, even before ample safety nets are provided and the concerns
heretofore expressed are aptly addressed, is a price too high to pay.
WHEREFORE, the petition is DENIED.
SO ORDERED.[18]
Petitioners
note
that
the
1965
case
of Estes
v.
Texas which Aquino and Estrada heavily cited, was borne out of the dynamics of
a jury system, where the considerations for the possible infringement of the
impartiality of a jury, whose members are not necessarily schooled in the law, are
different from that of a judge who is versed with the rules of evidence. To
petitioners, Estes also does not represent the most contemporary position of
the United States in the wake of latest jurisprudence[21] and statistical figures
revealing that as of 2007 all 50 states, except the District of Columbia, allow
television coverage with varying degrees of openness.
[20]
Other jurisdictions welcome the idea of media coverage. Almost all the
proceedings of United Kingdoms Supreme Court are filmed, and sometimes
broadcast.[22] The International Criminal Court broadcasts its proceedings via
video streaming in the internet.[23]
On the media coverages influence on judges, counsels and witnesses,
petitioners point out that Aquino and Estrada, likeEstes, lack empirical evidence to
support the sustained conclusion. They point out errors of generalization where the
conclusion has been mostly supported by studies on American attitudes, as there
has been no authoritative study on the particular matter dealing with Filipinos.
Respecting the possible influence of media coverage on the impartiality of
trial court judges, petitioners correctly explain that prejudicial publicity insofar as
it undermines the right to a fair trial must pass the totality of
circumstances test, applied inPeople v. Teehankee, Jr.[24] and Estrada v. Desierto,
[25]
that the right of an accused to a fair trial is not incompatible to a free press, that
pervasive publicity is not per se prejudicial to the right of an accused to a fair trial,
and that there must be allegation and proof of the impaired capacity of a judge to
render a bias-free decision. Mere fear of possible undue influence is not
tantamount to actual prejudice resulting in the deprivation of the right to a fair
trial.
Moreover, an aggrieved party has ample legal remedies. He may challenge
the validity of an adverse judgment arising from a proceeding that transgressed a
constitutional right. As pointed out by petitioners, an aggrieved party may early on
move for a change of venue, for continuance until the prejudice from publicity is
abated, for disqualification of the judge, and for closure of portions of the trial
when necessary. The trial court may likewise exercise its power of contempt and
issue gag orders.
One apparent circumstance that sets the Maguindanao Massacre cases apart
from the earlier cases is the impossibility of accommodating even the parties to the
cases the private complainants/families of the victims and other witnesses
inside the courtroom. On public trial, Estrada basically discusses:
An accused has a right to a public trial but it is a right that belongs to him,
more than anyone else, where his life or liberty can be held critically in balance. A
public trial aims to ensure that he is fairly dealt with and would not be unjustly
condemned and that his rights are not compromised in secrete conclaves of long
ago. A public trial is not synonymous with publicized trial; it only implies that the
court doors must be open to those who wish to come, sit in the available seats,
conduct themselves with decorum and observe the trial process. In the
constitutional sense, a courtroom should have enough facilities for a reasonable
number of the public to observe the proceedings, not too small as to render the
openness negligible and not too large as to distract the trial participants from their
proper functions, who shall then be totally free to report what they have observed
during the proceedings.[26] (underscoring supplied)
(k) The Court shall create a special committee which shall forthwith
study, design and recommend appropriate arrangements, implementing
regulations, and administrative matters referred to it by the Court
concerning the live broadcast of the proceedings pro hac vice, in
accordance with the above-outlined guidelines. The Special
Committee shall also report and recommend on the feasibility,
WE CONCUR:
ANTONIO T. CARPIO
Associate Justice
ARTURO D. BRION
Associate Justice
DIOSDADO M. PERALTA
Associate Justice
LUCAS P. BERSAMIN
Associate Justice
ROBERTO A. ABAD
Associate Justice
*
[1]
[2]
[3]
[4]
[5]
[6]
[7]
[8]
[9]
[10]
[11]
[12]
[13]
[14]
[15]
[16]
[17]
[18]
[19]
[20]
[21]
MARIA LOURDES P. A.
SERENOAssociate Justice
On official leave.
Ma. Reynafe Momay-Castillo, Editha Mirandilla-Tiamzon, and Glenna Legarta.
Horacio Severino, Glenda Gloria, Mariquit Almario Gonzales, Arlene Burgos, Abraham Balabad, Jr., Joy
Gruta, Ma. Salvacion Varona, Isagani De Castro, Danilo Lucas, Cecilia Victoria Orena Drilon, Cecilia
Lardizabal, Vergel Santos, Romula Marinas, Noel Angel Alamar, Joseph Alwyn Alburo, Rowena Paraan,
Ma. Cristina Rodriguez, Luisita Cruz Valdes, David Jude Sta. Ana, and Joan Bondoc.
Roland Tolentino, Danilo Arao, Elena Pernia, Elizabeth Enriquez, Daphne Tatiana Canlas, Rosalina
Yokomori, Marinela Aseron, Melba Estonilo, Lourdes Portus, Josefina Santos, and Yumina Francisco,
Vide rollo (A.M. No. 10-11-5-SC), p. 95.
Represented by its president, Jerry Yap.
Represented by its president, Benny Antiporda.
Vide rollo (A.M. No. 10-11-6-SC), p. 19.
Rollo (A.M. No. 10-11-7-SC), pp. 1-2.
Id. at 2.
Rollo (A.M. No. 10-11-7-SC), p. 3; rollo (A.M. No. 10-11-5-SC), p. 186.
The Sangguniang Panlungsod of General Santos City endorsed Resolution No. 484 of November 22,
2010 which resolved to strongly urge the Supreme Court of thePhilippines to allow a live media coverage
for public viewing and information on the court proceedings/trial of the multiple murder case filed against
the suspects of the Maguindanao massacre. The Court noted it by Resolution of December 14,
2010. Rollo, (A.M. No. 10-11-5-SC), pp. 429-431, 434.
The Integrated Bar of the Philippines (IBP) Cebu City Chapter passed Resolution No. 24 (December 7,
2010) which resolved, inter alia, respectfully ask the Supreme Court to issue a circular or order to allow
Judge Jocelyn Solis-Reyes to concentrate on the case of the Maguindanao massacre, unencumbered by
other cases until final decision in this case is rendered. The Court noted it by Resolution of January 18,
2011. Rollo, (A.M. No. 10-11-6-SC), pp. 90-91, 97.
The Sangguniang Panlungsod of Cagayan de Oro City also carried Resolution Nos. 10342-2010 and
10343-2010, both dated November 23, 2010, which resolved to support the clamor for speedy trial and
that the hearing of the Maguindanao massacre be made public with a request to consider the appeal to
air live the hearings thereof. The Court noted it by Resolution of December February 1, 2011. Rollo,
(A.M. No. 10-11-5-SC), pp. 671-674, 676.
En Banc Resolution of October 22, 1991.
A.M. No. 01-4-03-SC, June 29, 2001, 360 SCRA 248; Perez v. Estrada, 412 Phil. 686 (2001).
Rollo, (A.M. No. 10-11-5-SC), p. 121.
Id. at 122.
Based on the 1981 book entitled Putts Law and the Successful Technocrat which is attributed to the
pseudonym Archibald Putt.
Supra note 20 at 6-7.
Perez v. Estrada, 412 Phil. 686, 711.
A.M. No. 01-4-03-SC, September 13, 2001, 365 SCRA 62, 70.
381 U.S. 532 (1965).
Chandler v. Florida, 449 U.S. 560 (1981).
[22]
[23]
[24]
[25]
[26]
[27]